82 FR 58778 - Passports
DEPARTMENT OF STATE Federal Register Volume 82, Issue 239 (December 14, 2017)
Federal Register Volume 82, Issue 239 (December 14, 2017)
| Page Range | 58778-58783 | |
| FR Document | 2017-26751 |
[Federal Register Volume 82, Number 239 (Thursday, December 14, 2017)] [Proposed Rules] [Pages 58778-58783] From the Federal Register Online [www.thefederalregister.org] [FR Doc No: 2017-26751] ======================================================================= ----------------------------------------------------------------------- DEPARTMENT OF STATE 22 CFR Parts 50 and 51 [Public Notice 9804] RIN 1400-AD54 Passports AGENCY: Department of State. ACTION: Proposed rule. ----------------------------------------------------------------------- SUMMARY: This proposed rule provides various changes and updates to the Department of State passport rules. The proposed rule incorporates statutory passport denial and revocation requirements for certain convicted sex offenders. It notes that, notwithstanding the legal bases for denial or revocation of a passport, the Department may issue a passport for direct return to the United States. It sets out the Department's procedures for denying and cancelling Consular Reports of Birth Abroad. Finally, the proposed rule provides additional information relating to the conduct of review hearings. DATES: The Department will accept comments on the proposed regulation up to February 12, 2018. ADDRESSES: Submit comments by any of the following methods:Internet: At www.regulations.gov, search for this notice by searching for Docket No. DOS-2016-0080 or RIN 1400-AD54. By mail: Director, Office of Legal Affairs and Law Enforcement Liaison, Passport Services, U.S. Department of State, 44132 Mercure Circle, P.O. Box 1227, Sterling, VA 20166-1227 By email: Submit comments to: [email protected]. FOR FURTHER INFORMATION CONTACT: Anita Mody, Office of Legal Affairs, Passport Services, (202) 485-6500. Hearing- or speech-impaired persons [[Page 58779]] may use the Telecommunications Devices for the Deaf (TDD) by contacting the Federal Information Relay Service at 1-800-877-8339. SUPPLEMENTARY INFORMATION: The Department is proposing to amend various sections of Subparts A, E, and F within Part 51 and Subpart A within Part 50 of Title 22 of the CFR. Consistent with 22 U.S.C. 211a, the proposed rule in Sec. 51.4(g)(1) revises the previous rule to now state that a passport is invalid when the passport revocation notification is approved. This revision leaves unchanged the Department's obligation, set forth at Sec. 51.65(a), to send notification of the revocation, and the reasons therefor, in writing. The proposed new provision in Sec. 51.4(g)(8) provides that a passport is invalid when a Certificate of Loss of Nationality is approved. This provision, consistent with 8 U.S.C. 1481(a), specifies that a passport is not valid once the Department approves the bearer's formal renunciation of nationality. The proposed rule incorporates statutory passport denial and revocation requirements for certain convicted sex offenders as codified at 22 U.S.C. 212a. Proposed Sec. 51.60(h) requires denial of a passport to an individual convicted under 18 U.S.C. 2423 and who used a passport or otherwise crossed an international border in committing the underlying offense. In accordance with 22 U.S.C. 212a, upon timely notification by the Attorney General, such an individual's passport application will be denied during the period covering the date of conviction and ending on the later of (1) the date on which the individual is released from a sentence of imprisonment relating to the offense; or (2) the end of a period of parole or other supervised release of the covered individual relating to the offense. However the Department may issue a passport in emergency circumstances or for humanitarian reasons, or may issue a limited passport valid only for direct return to the United States. Proposed Sec. 51.60(i) notes the Department's authority, consistent with 22 U.S.C. 217a, to, as appropriate, issue limited validity passports good only for direct return to the United States, notwithstanding any prior revocation or denial. Proposed Sec. 51.62(d) requires revocation of a passport previously issued to an individual convicted under 18 U.S.C. 2423 and who used a passport or otherwise crossed an international border in committing the underlying offense. In accordance with 22 U.S.C. 212a, upon timely notification by the Attorney General, such an individual's passport will be revoked once convicted and until the later of (1) the date on which the individual is released from a sentence of imprisonment relating to the offense; or (2) the end of a period of parole or other supervised release of the covered individual relating to the offense. Proposed Sec. 51.62(c), deriving from the Department's existing statutory authority including under 8 U.S.C. 1504, sets out that the Department may cancel Consular Reports of Birth Abroad that were obtained illegally, fraudulently or erroneously; were created through illegality or fraud; have been fraudulently altered or misused; or where the bearer of the document is not a U.S. national. Specific reference to cancellation of Consular Reports of Birth Abroad has been added to the provisions on revocation or limitation of passports at Sec. 51.62, notification of such action at Sec. 51.65, the surrendering of passports at Sec. 51.66, and the right to a hearing in certain circumstances at Sec. 51.70(a). The proposed rule in Sec. 51.62(a)(1) also removes the reference to Sec. 51.28 concerning passports for minors, thereby removing the Department's discretion to revoke in circumstances where a U.S. passport may be denied under Sec. 51.28. Once parental consent is properly given and a passport issued, the Department has consistently taken the position that such a properly issued passport may not be revoked upon a subsequent withdrawal of parental consent. The proposed rule in Sec. 51.70(b) revises the non-exhaustive list of provisions under which a hearing will not be provided if the Department denies, restricts, revokes, cancels or invalidates a passport or Consular Report of Birth Abroad under Sec. Sec. 51.60(a), 51.60(f), 51.60(g), 51.61(a), 51.62(b), 51.62(c)(3), 51.62(d), or 51.64, such that it is consistent with other revisions made as a part of this notice. Section 51.60(a) refers to instances where the Department may not issue a passport because the applicant is in default on a repatriation loan or certified to be in arrears of child support. In accordance with Sec. 51.60(f), the Department may deny an application if the individual has failed to provide his or her social security number on a passport application, or purposefully provides an incorrect number. In accordance with Sec. 51.60(g), the Department shall not issue a passport to a covered sex offender as defined by 22 U.S.C. 212b(c)(1). Section 51.61(a) specifies that the Department may not issue a passport to an applicant subject to imprisonment or supervised release as a result of a federal or state felony drug offense, if the individual used the passport or crossed an international border in committing the offense. Sections 51.62(b) and 51.62(c)(3) address where the Department revokes a passport, or cancels a Consular Report of Birth Abroad, after determining the individual is not a U.S. national, or revokes the passport after being on notice that an individual's certificate of citizenship or naturalization has been cancelled. Under Sec. 51.62(d), the Department revokes a U.S. passport for individuals convicted of illicit sexual conduct under 18 U.S.C. 2423, during the covered period defined by 22 U.S.C. 212a, and who used a passport or crossed an international border in committing the offense. Section 51.64 refers to specially validated passports for travel to restricted areas. The proposed rule amends Sec. 50.7(d), which currently includes procedures for cancellation of Consular Reports of Birth Abroad and hearings for such cancellations, to include a reference to Sec. 51.60 through Sec. 51.74. The proposed rule in Sec. 51.65(a)-(c) notes that the procedures for providing notification of denials, revocation, or cancellation of passports also applies to Consular Reports of Birth Abroad, and specifies in proposed Sec. 51.65(c) that the Department may exercise its discretion to administratively re-open a previously filed passport or Consular Report of Birth Abroad application in order to issue the passport or Consular Report of Birth Abroad. In order to provide the public with additional information regarding the denial/revocation review hearing process, the proposed rule also provides further details and requirements for the conduct of review hearings and specifies that the set of circumstances for which hearings may be held include certain cancellations of Consular Reports of Birth Abroad. The proposed rule provides at Sec. 51.70(e) that the individual requesting the hearing may obtain one continuance of up to ninety days upon written request; and advises at Sec. 51.71 that the Department will provide copies of the evidence relied upon in denying, revoking, or cancelling the passport or Consular Report of Birth Abroad prior to the hearing. It specifies in Sec. 51.71(a) that the hearing officer will generally be a Department employee from the Bureau of Consular Affairs and that the hearing officer makes only preliminary findings of fact and recommendations and submits them to the Deputy Assistant Secretary for [[Page 58780]] Passport Services, or his or her designee in the Bureau of Consular Affairs. The proposed rule in Sec. 51.71(b)-(g) specifies the location of the hearing, and that failure to appear--either in person or through an attorney--at the hearing constitutes an abandonment of the request for the hearing; that there is no right to subpoena witnesses or to conduct discovery under the Federal Rules of Civil Procedure; and that passport hearings are not formal administrative hearings under the Administrative Procedure Act (APA). The Department is aware of no statute requiring that the provisions of 5 U.S.C. 554 apply to the hearing, and the Department has determined that such procedures will not be used. In addition, the proposed rule provides that individuals requesting hearings are responsible for the costs of any interpreters, who must be duly certified; and confirms that written briefs may be submitted prior to the hearing, but are not required. Proposed Sec. 51.71(h) specifies that the purpose of the hearing is to provide the affected individual with an opportunity to challenge the Department's decision; that the burden of production at the hearing is on the Department; and that the affected individual bears the burden of persuasion at the hearing to prove by a preponderance of the evidence that the Department improperly revoked the passport, denied the passport application, or cancelled the Consular Report of Birth Abroad based on the facts at the time such action was taken. The proposed rule in Sec. 51.72 notes that the hearing officer's preliminary findings and recommendation shall not be considered part of the record unless adopted by the Deputy Assistant Secretary for Passport Services or his or her designee. The proposed rule in Sec. 51.73 adds ``interpreter'' to the list of individuals able to be present at the hearing, and changes ``official reporters'' to ``the reporter transcribing the hearing.'' Under the proposed rule in Sec. 51.74, the final decision is made by the Deputy Assistant Secretary for Passport Services, or his or her designee, based on his or her review of the record of the hearing, findings of fact and recommendations of the hearing officer, and legal and policy considerations he or she deems relevant. The proposed rule also amends Sec. 50.11 to include further instruction on where to submit an appeal arising out of a denial of an application for a certificate of identity. Regulatory Findings Administrative Procedure Act The Department is publishing this rule as a proposed rule, with 60 days for public comments. Regulatory Flexibility Act/Executive Order 13272: Small Business The Department certifies that this proposed rule is not expected to have a significant impact on a substantial number of small entities under the criteria of the Regulatory Flexibility Act, 5 U.S.C. 601 et seq., and Executive Order 13272, section 3(b), as the rule being amended covers only individuals. The Small Business Regulatory Enforcement Fairness Act of 1996 This proposed rule is not a major rule, as defined by 5 U.S.C. 804, for purposes of congressional review of agency rulemaking. This rule would not result in an annual effect on the economy of $100 million or more; a major increase in costs or prices; or adverse effects on competition, employment, investment, productivity, innovation, or the ability of United States-based companies to compete with foreign-based companies in domestic and export markets. The Unfunded Mandates Reform Act of 1995 Section 202 of the Unfunded Mandates Reform Act of 1995, 2 U.S.C. 1532 generally requires agencies to prepare a statement before proposing any rule that may result in an annual expenditure of $100 million or more by State, local, or tribal governments, or by the private sector. This proposed rule does not result in any such expenditure nor will it significantly or uniquely affect small governments. Executive Orders 12372 and 13132: Federalism This proposed rule does not have substantial direct effects on the States, on the relationship between the national government and the States, or the distribution of power and responsibilities among the various levels of government. Nor will the rule have federalism implications warranting the application of Executive Orders 12372 and 13132. Executive Orders 12866 and 13563 The Department has reviewed this proposed rule to ensure its consistency with the regulatory philosophy and principles set forth in Executive Order 12866, and determined that the benefits of the proposed rule justify its costs. The Department does not consider the proposed rule to be an economically significant regulatory action within the scope of section 3(f)(1) of the Executive Order. The Department has considered this proposed rule in light of Executive Order 13563 and affirms that this proposed rule is consistent with the guidance therein. The proposed rule revises the Department's determination of when a passport is considered invalid when a passport is revoked or a Certificate of Loss of Nationality is approved. Further, the proposed rule presents the public with additional information regarding passport and Consular Report of Birth Abroad denial, cancellation and revocation hearings. These changes supply the public with more details regarding the place, requirements, procedures and purpose of such hearings. The proposed rule also provides the public with further instruction on where to submit an appeal arising out of a denial of an application for a certificate of identity. The proposed rule provides further information to the public about the procedures for cancelling a Consular Reports of Birth Abroad. The proposed rule also notifies the public of the Department's statutory obligation to deny or revoke U.S. passports for certain convicted sex offenders as codified at 22 U.S.C. 212a. The Department finds that this proposed rulemaking implements Congressional intent as reflected in the Immigration and Naturalization Act, and that the benefits of the proposed rulemaking outweigh any costs to the public. The Office of Information and Regulatory Affairs has designated this proposed rule as non-significant within the meaning of Executive Order 12866. Consequently, no actions are required pursuant to Executive Order 13771. Executive Order 12988: Civil Justice Reform The Department has reviewed the proposed rule in light of sections 3(a) and 3(b)(2) of Executive Order 12988 to eliminate ambiguity, minimize litigation, establish clear legal standards, and reduce burden. Executive Order 13175--Consultation and Coordination With Indian Tribal Governments. The Department has determined that this proposed rule will not have tribal implications, will not impose substantial direct compliance costs on Indian tribal governments, and will not pre-empt tribal law. Accordingly, the requirements of Section 5 of Executive Order 13175 do not apply to this rulemaking. [[Page 58781]] Paperwork Reduction Act of 1995 This proposed rule does not revise or impose any collections of information requirements subject to the PRA. List of Subjects 22 CFR Part 50 Citizenship and naturalization. 22 CFR Part 51 Administrative practice and procedure; Drug traffic control; Passports and visas; Reporting and recordkeeping requirements. Accordingly, for the reasons set forth in the preamble, the Department proposes to amend 22 CFR parts 50 and 51 as follows: PART 50--NATIONALITY PROCEDURES 0 1. The authority section of part 50 continues to read as follows: Authority: 22 U.S.C. 2651a; 8 U.S.C. 1104 and 1401 through 1504. 0 2. Amend Sec. 50.7 by revising paragraph (d) to read as follows: Sec. 50.7 Consular Report of Birth Abroad of a Citizen of the United States of America. * * * * * (d) A Consular Report of Birth Abroad may be cancelled in accordance with applicable provisions in 22 CFR 51.60 through 51.74. 0 3. Amend Sec. 50.11 by revising paragraph (b) to read as follows: Sec. 50.11 Certificate of identity for travel to the United States to apply for admission. * * * * * (b) When a diplomatic or consular officer denies an application for a certificate of identity under this section, the applicant may submit a written appeal to the Secretary through the U.S. embassy or consulate where the individual applied for the certificate of identity, stating the pertinent facts, the grounds upon which U.S. nationality is claimed, and his or her reasons for considering that the denial was not justified. PART 51--PASSPORTS 0 4. The authority section of part 51 is revised to read as follows: Authority: 8 U.S.C. 1504; 18 U.S.C. 1621, 2423; 22 U.S.C. 211a, 212, 212a, 212b, 213, 213n (Pub. L. 106-113 Div. B, Sec. 1000(a)(7) [Div. A, Title II, Sec. 236], 113 Stat. 1536, 1501A-430); 214, 214a, 217a, 218, 2651a, 2671(d)(3), 2705, 2714, 2721, 3926; 26 U.S.C. 6039E; 31 U.S.C. 9701; 42 U.S.C. 652(k) [Div. B, Title V of P. L. 103-317, 108 Stat. 1760]; E.O. 11295, FR 10603; Pub. L. 114-119, 130 Stat. 15; Sec. 1 of P. L. 109-210, 120 Stat. 319; Sec. 2 of P. L. 109-167, 119 Stat. 3578; Sec. 5 of P. L. 109-472, 120 Stat. 3554; P. L. 108-447, Div. B, Title IV 118 Stat. 2896; P. L. 108-458, 118 Stat. 3638, 3823. 0 5. Amend Sec. 51.4 by revising paragraph (g)(1) and adding paragraph (g)(8) to read as follows: Sec. 51.4 Validity of passports. * * * * * (g) * * * (1) The Department approves the revocation notification pursuant to Sec. 51.65(a); or * * * * * (8) The Department approves a Certificate of Loss of Nationality for the passport holder pursuant to Sec. 50.40 and 8 U.S.C. 1481. 0 6. Revise the heading to Subpart E to read as follows: Denial, Revocation, and Restriction of Passports and Cancellation of Consular Reports of Birth Abroad 0 7. Amend Sec. 51.60 by adding paragraphs (h) and (i) to read as follows: Sec. 51.60 Denial and restriction of passports. * * * * * (h) The Department may not issue a passport, except a limited validity passport for direct return to the United States or in instances where the Department finds that emergency circumstances or humanitarian reasons exist, in any case in which the Department is notified by the Attorney General that, during the covered period as defined by 22 U.S.C. 212a: (1) The applicant was convicted of a violation of 18 U.S.C. 2423, and (2) The individual used a passport or passport card or otherwise crossed an international border in committing the underlying offense. (i) In appropriate circumstances, where an individual's passport application is denied or passport revoked consistent with this part, the Department may issue a limited validity passport good only for direct return to the United States. 0 8. Section 51.62 is revised to read as follows: Sec. 51.62 Revocation or limitation of passports and cancellation of Consular Reports of Birth Abroad. (a) The Department may revoke or limit a passport when: (1) The bearer of the passport may be denied a passport under 22 CFR 51.60 or 51.61 or any other applicable provision contained in this part; (2) The passport was illegally, fraudulently or erroneously obtained from the Department; or was created through illegality or fraud practiced upon the Department; or (3) The passport has been fraudulently altered or misused. (b) The Department may revoke a passport when the Department has determined that the bearer of the passport is not a U.S. national, or the Department is on notice that the bearer's certificate of citizenship or certificate of naturalization has been cancelled. (c) The Department may cancel a Consular Report of Birth Abroad when: (1) The Consular Report of Birth Abroad was illegally, fraudulently or erroneously obtained from the Department, or was created through illegality or fraud practiced upon the Department; (2) The Consular Report of Birth Abroad has been fraudulently altered or misused; or (3) The Department has determined that the bearer of the Consular Report of Birth Abroad is not a U.S. national, or the Department is on notice that the bearer's certificate of citizenship has been cancelled. (d) The Department shall revoke a U.S. passport in any case in which the Department is notified by the Attorney General, that during the covered period as defined by 22 U.S.C. 212a: (1) The applicant was convicted of a violation of 18 U.S.C. 2423, and (2) The individual used a passport or otherwise crossed an international border in committing the underlying offense. (3) Notwithstanding paragraph (d)(1) and (d)(2), the Department may issue a limited validity passport for direct return to the United States. 0 9. Revise Sec. 51.65 as follows: Sec. 51.65 Notification of denial, revocation or cancellation of passports and Consular Reports of Birth Abroad. (a) The Department will send notice in writing to any person whose application for issuance of a passport or Consular Report of Birth Abroad has been denied, whose passport has been revoked, or whose Consular Report of Birth Abroad has been cancelled. The notification will set forth the specific reasons for the denial, revocation or cancellation and, if applicable, the procedures for review available under 22 CFR 51.70 through 51.74. (b) An application for a passport or Consular Report of Birth Abroad will be denied if an applicant fails to meet his or her burden of proof under the applicable regulations or otherwise does not provide documentation sufficient to establish entitlement to a passport or a Consular Report of Birth Abroad, or does not provide additional information as requested by the Department within the time provided in the notification by the Department that additional information is required. Thereafter, if an [[Page 58782]] applicant wishes the Department to adjudicate his or her claim of entitlement to a passport or Consular Report of Birth Abroad, he or she must submit a new application, supporting documents, and photograph, along with all applicable fees. (c) The Department may, in its sole discretion, administratively re-open a previously filed passport or Consular Report of Birth Abroad application in order to issue a passport or Consular Report of Birth Abroad. 0 10. Revise Sec. 51.66 to read as follows: Sec. 51.66 Surrender of passport and/or Consular Report of Birth Abroad. The bearer of a passport that is revoked or of a Consular Report of Birth Abroad that is cancelled must surrender it to the Department or its authorized representative upon demand. 0 11. Revise Sec. 51.70 to read as follows: Sec. 51.70 Request for hearing to review certain denials and revocations. (a) A person whose passport has been denied or revoked under 22 CFR 51.60(b)(1) through (10), 51.60(c), 51.60(d), 51.61(b), 51.62(a)(1), or 51.62(a)(2), or whose Consular Report of Birth Abroad is cancelled under Sec. 51.62(c)(1) or 51.62(c)(2), may request a hearing to review the basis for the denial, revocation, or cancellation, provided that the Department receives such a request, in writing, from such person or his or her attorney within 60 days of his or her receipt of the notice of the denial, revocation, or cancellation. Failure to timely request a hearing means the denial, revocation, or cancellation is the Department's final action. (b) The provisions of Sec. Sec. 51.70 through 51.74 do not apply to any action of the Department denying, restricting, revoking, cancelling or invalidating a passport or Consular Report of Birth Abroad, or in any other way adversely affecting the ability of a person to receive or use a passport or Consular Report of Birth Abroad, for reasons not set forth in Sec. 51.70(a), including, as applicable, those listed at: (1) Section 51.60(a) (instances where the Department may not issue a passport, except for direct return to the United States); (2) Section 51.60(f) (failure to provide a social security number, or purposefully providing an incorrect number); (3) Section 51.60(g) (denial of passports to certain convicted sex offenders); (4) Section 51.61(a) (denial of passports to certain convicted drug traffickers); (5) Section 51.62(b) (revocation of passports for non-U.S. nationals or where a certificate of citizenship or naturalization has been cancelled); (6) Section 51.62(c)(3) (cancellation of a Consular Report of Birth Abroad upon the Department's determination that the bearer is not a U.S. national or where a certificate of citizenship has been cancelled); (7) Section 51.62(d) (revocation of passports issued to certain convicted sex offenders); (8) Section 51.64 (specially validated passports); (9) Any other provision not listed at Sec. 51.70(a). (c) If a timely request for a hearing is made by a person seeking a hearing in accordance with these regulations, the Department will make reasonable efforts to hold the hearing within 90 days of the date the Department receives the request. (d) Within a reasonable period of time prior to the hearing, the Department will give the person requesting the hearing written notice of the date, time and place of the hearing and copies of the evidence relied on in denying, revoking, or cancelling the passport or Consular Report of Birth Abroad. (e) The person requesting the hearing may obtain one continuance, not to exceed an additional 90 days, upon written request. The request for a continuance must be received by the Department as soon as practicable and in no case less than five business days prior to the scheduled hearing date. Any further continuances are within the sole discretion of the Department. 0 12. Revise Sec. 51.71 to read as follows: Sec. 51.71 The hearing. (a) The Department will name a hearing officer, who will generally be a Department employee from the Bureau of Consular Affairs. The hearing officer will make only preliminary findings of fact and submit recommendations based on the record of the hearing, as defined in 22 CFR 51.72, to the Deputy Assistant Secretary for Passport Services, or his or her designee, in the Bureau of Consular Affairs. (b) The hearing shall take place in Washington, DC or, if the person requesting the hearing is overseas, at the appropriate U.S. diplomatic or consular post. The person requesting the hearing must appear in person or with or through his or her attorney. Failure to appear at the scheduled hearing will constitute an abandonment of the request for a hearing, and the Department's revocation, cancellation or denial will be considered the Department's final action. (c) Any attorney appearing at a hearing must be admitted to practice in any state of the United States, the District of Columbia, or any territory or possession of the United States, or be admitted to practice before the courts of the country in which the hearing is to be held. (d) There is no right to subpoena witnesses or to conduct discovery. However, the person requesting the hearing may testify in person, offer evidence in his or her own behalf, present witnesses, and make arguments at the hearing. The person requesting the hearing is responsible for all costs associated with the presentation of his or her case, including the cost of interpreters, who must be certified in accordance with standards established for federal courts under 18 U.S.C. 1827. The Department may present witnesses, offer evidence, and make arguments in its behalf. The Department is responsible for all costs associated with the presentation of its case. (e) The hearing is informal and permissive. As such, the provisions of 5 U.S.C. 554 et seq. do not apply to the hearing. Formal rules of evidence also do not apply; however, the hearing officer may impose reasonable restrictions on relevancy, materiality, and competency of evidence presented. Testimony will be under oath or by affirmation under penalty of perjury. The hearing officer may not consider any information that is not also made available to the person requesting the hearing, the Department, and made a part of the record of the proceeding. (f) If any witness is unable to appear, the hearing officer may, in his or her discretion, accept an affidavit or sworn deposition testimony of the witness, the cost for which will be the responsibility of the requesting party, subject to such limits as the hearing officer deems appropriate. (g) The person requesting the hearing and the Department of State may submit written briefs or argument prior to the hearing, but it is not required. The hearing officer will specify the date and schedule for the parties to submit written briefs, should they choose to do so. (h) The purpose of the hearing is to provide the person requesting the hearing an opportunity to challenge the basis for the Department's decision to deny or revoke the passport, or cancel the Consular Report of Birth Abroad. The burden of production is on the Department, and the Department shall provide the evidence it relied upon in revoking or denying the passport, or cancelling the Consular Report of Birth Abroad, prior to the hearing. The [[Page 58783]] burden of persuasion is on the person requesting the hearing, to prove by a preponderance of the evidence that the Department improperly revoked the passport or denied the passport application, or cancelled the Consular Report of Birth Abroad, based on the facts and law in effect at the time such action was taken. 0 13. Revise Sec. 51.72 to read as follows: Sec. 51.72 Transcript and record of the hearing. A qualified reporter, provided by the Department, will make a complete verbatim transcript of the hearing. The person requesting the hearing or his or her attorney may review and purchase a copy of the transcript directly from the reporter. The hearing transcript and all the information and documents received by the hearing officer, whether or not deemed relevant, will constitute the record of the hearing. The hearing officer's preliminary findings and recommendations are deliberative, and shall not be considered part of the record unless adopted by the Deputy Assistant Secretary for Passport Services, or his or her designee. 0 14. Revise Sec. 51.73 to read as follows: Sec. 51.73 Privacy of hearing. Only the person requesting the hearing, his or her attorney, an interpreter, the hearing officer, the reporter transcribing the hearing, and employees of the Department concerned with the presentation of the case may be present at the hearing. Witnesses may be present only while actually giving testimony or as otherwise directed by the hearing officer. 0 15. Revise Sec. 51.74 to read as follows: Sec. 51.74 Final decision. After reviewing the record of the hearing and the preliminary findings of fact and recommendations of the hearing officer, and considering legal and policy considerations he or she deems relevant, the Deputy Assistant Secretary for Passport Services, or his or her designee, will decide whether to uphold the denial or revocation of the passport or cancellation of the Consular Report of Birth Abroad. The Department will promptly notify the person requesting the hearing of the decision in writing. If the decision is to uphold the denial, revocation, or cancellation, the notice will contain the reason(s) for the decision. The decision is final and is not subject to further administrative review. Carl C. Risch, Assistant Secretary of State for Consular Affairs, Department of State. [FR Doc. 2017-26751 Filed 12-13-17; 8:45 am] BILLING CODE 4710-13-P
![58778 Federal Register / Vol. 82, No. 239 / Thursday, December 14, 2017 / Proposed Rules
consumers, also urged the Department DATES: December 14, 2017. we do not believe that Departmental
to reduce the number of categories by ADDRESSES: You may send comments by action is necessary to meet this objective
half. sending an email to Kimberly Graber at this time. The Department’s existing
(kimberly.graber@dot.gov) or Blane A. regulations already provide consumers
Reason for Withdrawal
Workie (blane.workie@dot.gov). Please some information regarding fees for
The purpose of this rulemaking was to include RIN 2105–AE56 in the subject ancillary services. The withdrawal
make airline pricing more transparent to line of the message. corresponds with the Department’s and
consumers and airline analysts. FOR FURTHER INFORMATION CONTACT: Administration’s priorities and is
Although we believe there would be Kimberly Graber or Blane A. Workie, consistent with the Executive Order
benefits of collecting and publishing the Office of the Assistant General Counsel 13771, Reducing Regulation and
proposed aviation data, the Department for Aviation Enforcement and Controlling Regulatory Costs, January
also takes seriously industry concerns Proceedings, U.S. Department of 30, 2017.
about the potential burden of this rule. Transportation, 1200 New Jersey Ave. Issued on 5th day of December 2017 in
The Department is withdrawing this SE, Washington, DC 20590, 202–366– Washington, DC.
rulemaking proposal. The withdrawal of 9342 (phone), kimberly.graber@dot.gov Elaine L. Chao,
this rulemaking corresponds with the or blane.workie@dot.gov (email). Secretary of Transportation.
Department’s and Administration’s Electronic Access: Docket: For access [FR Doc. 2017–26707 Filed 12–13–17; 8:45 am]
priorities and is consistent with the to the docket to read background
Executive Order 13771, Reducing BILLING CODE 4910–9X–P
documents and comments received, go
Regulation and Controlling Regulatory to the street address listed above or visit
Costs, January 30, 2017. http://www.regulations.gov. Enter the
DEPARTMENT OF STATE
Issued in Washington, DC, on December 5, docket number DOT–OST–2017–0007
2017. in the search field. 22 CFR Parts 50 and 51
Elaine L. Chao, SUPPLEMENTARY INFORMATION: On
Secretary of Transportation. January 9, 2017, the Department issued [Public Notice 9804]
[FR Doc. 2017–26708 Filed 12–13–17; 8:45 am] an SNPRM that proposed to require air RIN 1400–AD54
BILLING CODE P carriers, foreign air carriers, and ticket
agents to clearly disclose to consumers Passports
at all points of sale customer-specific fee
AGENCY: Department of State.
DEPARTMENT OF TRANSPORTATION information, or itinerary-specific
information if a customer elects not to ACTION: Proposed rule.
Office of the Secretary provide customer-specific information, SUMMARY: This proposed rule provides
for a first checked bag, a second checked various changes and updates to the
14 CFR Part 399 bag, and one carry-on bag wherever fare Department of State passport rules. The
[Docket No. DOT–OST–2017–0007] and schedule information is provided to proposed rule incorporates statutory
consumers (see 82 FR 7536, Jan. 19, passport denial and revocation
RIN 2105–AE56 2017). The SNPRM further proposed to requirements for certain convicted sex
require airlines to provide useable, offenders. It notes that, notwithstanding
Transparency of Airline Ancillary
current, and accurate (but not the legal bases for denial or revocation
Service Fees
transactable) baggage fee information to of a passport, the Department may issue
AGENCY: Office of the Secretary (OST), all ticket agents that receive and a passport for direct return to the United
U.S. Department of Transportation distribute the airline’s fare and schedule States. It sets out the Department’s
(DOT). information, including Global procedures for denying and cancelling
ACTION: Notice of withdrawal of Distribution Systems and metasearch Consular Reports of Birth Abroad.
proposed rulemaking. entities. If an airline or ticket agent has Finally, the proposed rule provides
a website that markets to U.S. additional information relating to the
SUMMARY: The Department is consumers, the SNPRM proposed to conduct of review hearings.
withdrawing the supplemental notice of require the baggage fee information to be
proposed rulemaking (SNPRM) on DATES: The Department will accept
disclosed at the first point in a search
Transparency of Airline Ancillary process where a fare is listed in comments on the proposed regulation
Service Fees issued on January 9, 2017. connection with a specific flight up to February 12, 2018.
The SNPRM proposed to require air itinerary, adjacent to the fare. The ADDRESSES: Submit comments by any of
carriers, foreign air carriers, and ticket SNPRM also proposed to permit airlines the following methods:
agents to clearly disclose to consumers and ticket agents to allow customers to • Internet: At www.regulations.gov,
at all points of sale customer-specific fee opt-out of receiving the baggage fee search for this notice by searching for
information, or itinerary-specific information when using their websites. Docket No. DOS–2016–0080 or RIN
information if a customer elects not to On March 2, 2017, the Department 1400–AD54.
provide customer-specific information, suspended the comment period, which • By mail: Director, Office of Legal
for a first checked bag, a second checked had been scheduled to close on March Affairs and Law Enforcement Liaison,
bag, and one carry-on bag wherever fare 20, 2017. The suspension of the Passport Services, U.S. Department of
sradovich on DSK3GMQ082PROD with PROPOSALS
and schedule information is provided to comment period was to allow the State, 44132 Mercure Circle, P.O. Box
consumers. The withdrawal of this President’s appointees the opportunity 1227, Sterling, VA 20166–1227
rulemaking corresponds with the to review and consider this action. After • By email: Submit comments to:
Department’s and Administration’s a careful review, the Department has PassportRules@state.gov.
priorities and is consistent with determined to withdraw the SNPRM. FOR FURTHER INFORMATION CONTACT:
Executive Order 13771, Reducing The Department is committed to Anita Mody, Office of Legal Affairs,
Regulation and Controlling Regulatory protecting consumers from hidden fees Passport Services, (202) 485–6500.
Costs, January 30, 2017. and to ensuring transparency. However, Hearing- or speech-impaired persons
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![Federal Register / Vol. 82, No. 239 / Thursday, December 14, 2017 / Proposed Rules 58781
Paperwork Reduction Act of 1995 Sec. 5 of P. L. 109–472, 120 Stat. 3554; P. L. (b) The Department may revoke a
108–447, Div. B, Title IV 118 Stat. 2896; P. passport when the Department has
This proposed rule does not revise or L. 108–458, 118 Stat. 3638, 3823.
impose any collections of information determined that the bearer of the
■ 5. Amend § 51.4 by revising paragraph passport is not a U.S. national, or the
requirements subject to the PRA. (g)(1) and adding paragraph (g)(8) to Department is on notice that the bearer’s
List of Subjects read as follows: certificate of citizenship or certificate of
22 CFR Part 50 § 51.4 Validity of passports. naturalization has been cancelled.
* * * * * (c) The Department may cancel a
Citizenship and naturalization. Consular Report of Birth Abroad when:
(g) * * *
22 CFR Part 51 (1) The Department approves the (1) The Consular Report of Birth
revocation notification pursuant to Abroad was illegally, fraudulently or
Administrative practice and erroneously obtained from the
procedure; Drug traffic control; § 51.65(a); or
* * * * * Department, or was created through
Passports and visas; Reporting and illegality or fraud practiced upon the
recordkeeping requirements. (8) The Department approves a
Certificate of Loss of Nationality for the Department;
Accordingly, for the reasons set forth (2) The Consular Report of Birth
in the preamble, the Department passport holder pursuant to § 50.40 and
8 U.S.C. 1481. Abroad has been fraudulently altered or
proposes to amend 22 CFR parts 50 and misused; or
■ 6. Revise the heading to Subpart E to
51 as follows: (3) The Department has determined
read as follows:
that the bearer of the Consular Report of
PART 50—NATIONALITY Denial, Revocation, and Restriction of Birth Abroad is not a U.S. national, or
PROCEDURES Passports and Cancellation of Consular the Department is on notice that the
Reports of Birth Abroad bearer’s certificate of citizenship has
■ 1. The authority section of part 50
continues to read as follows: ■ 7. Amend § 51.60 by adding been cancelled.
paragraphs (h) and (i) to read as follows: (d) The Department shall revoke a
Authority: 22 U.S.C. 2651a; 8 U.S.C. 1104 U.S. passport in any case in which the
and 1401 through 1504. § 51.60 Denial and restriction of passports. Department is notified by the Attorney
■ 2. Amend § 50.7 by revising paragraph * * * * * General, that during the covered period
(d) to read as follows: (h) The Department may not issue a as defined by 22 U.S.C. 212a:
§ 50.7 Consular Report of Birth Abroad of passport, except a limited validity (1) The applicant was convicted of a
a Citizen of the United States of America. passport for direct return to the United violation of 18 U.S.C. 2423, and
States or in instances where the (2) The individual used a passport or
* * * * *
(d) A Consular Report of Birth Abroad Department finds that emergency otherwise crossed an international
circumstances or humanitarian reasons border in committing the underlying
may be cancelled in accordance with
exist, in any case in which the offense.
applicable provisions in 22 CFR 51.60
Department is notified by the Attorney (3) Notwithstanding paragraph (d)(1)
through 51.74.
■ 3. Amend § 50.11 by revising
General that, during the covered period and (d)(2), the Department may issue a
paragraph (b) to read as follows: as defined by 22 U.S.C. 212a: limited validity passport for direct
(1) The applicant was convicted of a return to the United States.
§ 50.11 Certificate of identity for travel to violation of 18 U.S.C. 2423, and ■ 9. Revise § 51.65 as follows:
the United States to apply for admission. (2) The individual used a passport or
* * * * * passport card or otherwise crossed an § 51.65 Notification of denial, revocation or
(b) When a diplomatic or consular international border in committing the cancellation of passports and Consular
underlying offense. Reports of Birth Abroad.
officer denies an application for a
certificate of identity under this section, (i) In appropriate circumstances, (a) The Department will send notice
the applicant may submit a written where an individual’s passport in writing to any person whose
appeal to the Secretary through the U.S. application is denied or passport application for issuance of a passport or
embassy or consulate where the revoked consistent with this part, the Consular Report of Birth Abroad has
individual applied for the certificate of Department may issue a limited validity been denied, whose passport has been
identity, stating the pertinent facts, the passport good only for direct return to revoked, or whose Consular Report of
grounds upon which U.S. nationality is the United States. Birth Abroad has been cancelled. The
■ 8. Section 51.62 is revised to read as notification will set forth the specific
claimed, and his or her reasons for
follows: reasons for the denial, revocation or
considering that the denial was not
justified. § 51.62 Revocation or limitation of
cancellation and, if applicable, the
passports and cancellation of Consular procedures for review available under
PART 51—PASSPORTS Reports of Birth Abroad. 22 CFR 51.70 through 51.74.
(a) The Department may revoke or (b) An application for a passport or
■ 4. The authority section of part 51 is Consular Report of Birth Abroad will be
revised to read as follows: limit a passport when:
(1) The bearer of the passport may be denied if an applicant fails to meet his
Authority: 8 U.S.C. 1504; 18 U.S.C. 1621, denied a passport under 22 CFR 51.60 or her burden of proof under the
2423; 22 U.S.C. 211a, 212, 212a, 212b, 213, applicable regulations or otherwise does
sradovich on DSK3GMQ082PROD with PROPOSALS
or 51.61 or any other applicable
213n (Pub. L. 106–113 Div. B, Sec. 1000(a)(7) not provide documentation sufficient to
provision contained in this part;
[Div. A, Title II, Sec. 236], 113 Stat. 1536, establish entitlement to a passport or a
(2) The passport was illegally,
1501A–430); 214, 214a, 217a, 218, 2651a, Consular Report of Birth Abroad, or
2671(d)(3), 2705, 2714, 2721, 3926; 26 U.S.C. fraudulently or erroneously obtained
6039E; 31 U.S.C. 9701; 42 U.S.C. 652(k) [Div. from the Department; or was created does not provide additional information
B, Title V of P. L. 103–317, 108 Stat. 1760]; through illegality or fraud practiced as requested by the Department within
E.O. 11295, FR 10603; Pub. L. 114–119, 130 upon the Department; or the time provided in the notification by
Stat. 15; Sec. 1 of P. L. 109–210, 120 Stat. (3) The passport has been the Department that additional
319; Sec. 2 of P. L. 109–167, 119 Stat. 3578; fraudulently altered or misused. information is required. Thereafter, if an
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![Federal Register / Vol. 82, No. 239 / Thursday, December 14, 2017 / Proposed Rules 58783
burden of persuasion is on the person NATIONAL LABOR RELATIONS for receipt by mail). Only responses
requesting the hearing, to prove by a BOARD submitted as described above will be
preponderance of the evidence that the accepted; ex parte communications
Department improperly revoked the 29 CFR Parts 101 and 102 received by the Board will be made part
passport or denied the passport RIN 3142–AA12 of the record and will be treated as
application, or cancelled the Consular responses only insofar as appropriate.
Report of Birth Abroad, based on the Representation-Case Procedures The Board requests that responses
facts and law in effect at the time such include full citations or internet links to
action was taken. AGENCY: National Labor Relations any authority relied upon. All responses
■ 13. Revise § 51.72 to read as follows: Board. submitted to www.nlrb.gov will be
ACTION: Request for information. posted on the Agency’s public website
§ 51.72 Transcript and record of the
hearing. as soon after receipt as practicable
SUMMARY: The National Labor Relations without making any changes to the
A qualified reporter, provided by the Board (the Board) is seeking information responses, including changes to
Department, will make a complete from the public regarding its
verbatim transcript of the hearing. The personal information provided. The
representation election regulations (the Board cautions responders not to
person requesting the hearing or his or Election Regulations), with a specific
her attorney may review and purchase include in the body of their responses
focus on amendments to the Board’s personal information such as Social
a copy of the transcript directly from the representation case procedures adopted
reporter. The hearing transcript and all Security numbers, personal addresses,
by the Board’s final rule published on personal telephone numbers, and
the information and documents received December 15, 2014 (the Election Rule or
by the hearing officer, whether or not personal email addresses, as such
Rule). As part of its ongoing efforts to submitted information will become
deemed relevant, will constitute the more effectively administer the National
record of the hearing. The hearing viewable by the public when the
Labor Relations Act (the Act or the responses are posted online. It is the
officer’s preliminary findings and NLRA) and to further the purposes of
recommendations are deliberative, and responders’ responsibility to safeguard
the Act, the Board has an interest in their information. The responders’ email
shall not be considered part of the reviewing the Election Rule to evaluate
record unless adopted by the Deputy addresses will not be posted on the
whether the Rule should be: Retained Agency website unless they choose to
Assistant Secretary for Passport without change, retained with
Services, or his or her designee. include that information as part of their
modifications, or rescinded, possibly responses.
■ 14. Revise § 51.73 to read as follows:
while making changes to the prior
FOR FURTHER INFORMATION CONTACT:
§ 51.73 Privacy of hearing. Election Regulations that were in place
Roxanne Rothschild, Deputy Executive
Only the person requesting the before the Rule’s adoption. Regarding
Secretary, National Labor Relations
hearing, his or her attorney, an these questions, the Board believes it
Board, 1015 Half Street SE, Washington,
interpreter, the hearing officer, the will be helpful to solicit and consider
DC 20570, (202) 273–2917 (this is not a
reporter transcribing the hearing, and public responses to this request for
toll-free number), 1–866–315–6572
employees of the Department concerned information.
(TTY/TDD).
with the presentation of the case may be DATES: Responses to this request for SUPPLEMENTARY INFORMATION:
present at the hearing. Witnesses may be information must be received by the
present only while actually giving Board on or before February 12, 2018. I. Background
testimony or as otherwise directed by No late responses will be accepted. On December 15, 2014, the Board
the hearing officer. Responses are limited to 25 pages. published the Election Rule, which
■ 15. Revise § 51.74 to read as follows: ADDRESSES: You may submit responses amended the Board’s prior Election
§ 51.74 Final decision. by the following methods: Internet— Regulations. 79 FR 74308 (December 15,
After reviewing the record of the Electronic responses may be submitted 2014). The Election Rule was adopted
hearing and the preliminary findings of by going to www.nlrb.gov and following after public comment periods in which
fact and recommendations of the the link to submit responses to this tens of thousands of public comments
hearing officer, and considering legal request for information. The Board were received. The Rule was approved
and policy considerations he or she encourages electronic filing. Delivery—If by a three-member Board majority, with
deems relevant, the Deputy Assistant you do not have the ability to submit two Board members expressing
Secretary for Passport Services, or his or your response electronically, responses dissenting views. Thereafter, the Rule
her designee, will decide whether to may be submitted by mail to: Roxanne was submitted for review by Congress
uphold the denial or revocation of the Rothschild, Deputy Executive Secretary, pursuant to the Congressional Review
passport or cancellation of the Consular National Labor Relations Board, 1015 Act. In March 2015, majorities in both
Report of Birth Abroad. The Department Half Street SE, Washington, DC 20570. houses of Congress voted in favor of a
will promptly notify the person Because of security precautions, the joint resolution disapproving the
requesting the hearing of the decision in Board experiences delays in U.S. mail Board’s rule and declaring that it should
writing. If the decision is to uphold the delivery. You should take this into have no force or effect. President Obama
denial, revocation, or cancellation, the consideration when preparing to meet vetoed this resolution on March 31,
the deadline for submitting responses. It 2015. The amendments adopted by the
sradovich on DSK3GMQ082PROD with PROPOSALS
notice will contain the reason(s) for the
decision. The decision is final and is not is not necessary to submit responses by final rule became effective on April 14,
subject to further administrative review. mail if they have been filed 2015, and have been applicable to all
electronically on www.nlrb.gov. If you representation cases filed on or after
Carl C. Risch, submit responses by mail, the Board that date. Multiple parties initiated
Assistant Secretary of State for Consular recommends that you confirm receipt of lawsuits challenging the facial validity
Affairs, Department of State. your delivered responses by checking of the Election Rule, and those
[FR Doc. 2017–26751 Filed 12–13–17; 8:45 am] www.nlrb.gov to confirm that your challenges were rejected. See Associated
BILLING CODE 4710–13–P response is posted there (allowing time Builders & Contractors of Texas, Inc. v.
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Document Created: 2018-10-25 10:51:41
Document Modified: 2018-10-25 10:51:41
| Category | Regulatory Information | |
| Collection | Federal Register | |
| sudoc Class | AE 2.7: GS 4.107: AE 2.106: | |
| Publisher | Office of the Federal Register, National Archives and Records Administration | |
| Section | Proposed Rules | |
| Action | Proposed rule. | |
| Dates | The Department will accept comments on the proposed regulation up to February 12, 2018. | |
| Contact | Anita Mody, Office of Legal Affairs, Passport Services, (202) 485-6500. Hearing- or speech-impaired persons may use the Telecommunications Devices for the Deaf (TDD) by contacting the Federal Information Relay Service at 1-800-877-8339. | |
| FR Citation | 82 FR 58778 | |
| RIN Number | 1400-AD54 | |
| CFR Citation | 22
CFR
50 22 CFR 51 | |
| CFR Associated | Citizenship and Naturalization and Administrative Practice and Procedure; Drug Traffic Control; Passports and Visas; Reporting and Recordkeeping Requirements |
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